2017-467-Minutes for Meeting December 13,2016 Recorded 8/4/2017Recorded in Deschutes County CJ2017-467
Nancy Blankenship, County Clerk
TES Commissioners' Journal 08/04/2017 8:57:00 AM
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For Recording Stamp Only
Deschutes County Board of Commissioners
1300 NW Wall St., Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org
MINUTES OF DESCHUTES COUNTY BUDGET COMMITTEE MEETING
TUESDAY, DECEMBER 13, 2016
Present were Commissioners Anthony DeBone and Alan Unger; Commissioner
Tammy Baney attended by conference call. Also present were Tom Anderson,
County Administrator; Erik Kropp, Deputy County Administrator; Budget
Committee Members Jimm Burton, Mike Maier and Bruce Barrett; Wayne Lowry
and Loni Burk, Finance; Kathleen Hinman, Human Resources; and, for a portion of
the meeting, Ken Hales, Community Corrections; Whitney Hale, Information
Officer; David Givans, Internal Auditor; and Judith Ure, Administration. Citizen
Dan Turel and Commissioner -elect Phil Henderson were in attendance. There
were no representatives of the media present.
Budget Committee Chair Bruce Barrett called the meeting to order at 1:30 p.m.
1) Opening Comments.
Tom Anderson provided opening comments to the group. Discussion will
include an overview of major funding categories and potential challenges.
There have been no major changes in most categories, but some are a
concern, such as PERS.
He introduced Kathleen Hinman, who has been appointed the Human
Resources Director after being interim Director for months.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 1 of 14
2) County Financial Update.
Wayne Lowry referred to a PowerPoint presentation and explained the
various categories. He referred to handouts as well.
a) General Fund
He said that much of this is still to be seen, since they are not even
halfway through the fiscal year. Most have not seen much of a variance
from budget. They started out with a larger than anticipated balance.
b) Other Selected Funds
Solid Waste is doing well, and is an economic indicator. CDD numbers
are based on permit activity, which is robust and continues at an
increase from last year of 6 to 8%. The Redmond contract was
terminated, since they are doing their own CDD work now.
The Road funds are strong, but there will be less future federal funding.
The RV Park continues to increase each year, by about 5%. Revenues
are close to exceeding the expenses of running it. There is State RV Park
funding that goes into this account.
Room tax is another bright spot for the economy. Mike Maier asked if
any funding would be lost due to the Bend UGB expansion. He was
advised that none of the major resorts are affected.
c) A/V & Property Taxes
Market values continue on a fairly strong curve, but are not where they
were at one point in the past. It is increasing at about 3% a year even
without considering new construction.
Phil Henderson asked why it isn't where it was before, as the values in
the cities have gone up a lot. Mr. Lowry stated it is based on market
value and deals mostly with rural properties. Mr. Anderson added that
values went down tremendously and it takes time to recuperate. Mr.
Lowry said that outside the cities there is a more sustained increase of 3
to 3.5%. He likes this increase being gradual so it is not unrealistic.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 2 of 14
Commissioner DeBone said the on -paper value was way too high for a
while, and then went down a lot. It is taking a while for it to rebuild,
especially in the rural areas. Mike Maier noted that on paper, values
went high and then low.
Mr. Barrett added that people are being more cautious now and it is
harder to get a mortgage loan. Many who move here cannot afford to
buy a property even now. Speculation drove up the values in the peak
years.
Mr. Lowry explained the various tax levies, and where the money goes.
Most of the tax funds do not go to the County, but to districts, including
the schools. Some goes to the law enforcement districts, 9-1-1 and
Extension/4-H. Other amounts go to Black Butte Ranch, Sunriver and
others. Most have not levied the entire amount that they could.
d) Development Activity
Development revenues went through the same cycle, and are back to
about what they were years ago. This is due to more permits and
slightly higher fees. This varies according to the work being done.
e) Room Tax
Room taxes have increased, with 2016 being very robust. COVA, the
Sheriff, the General Fund and the Fair & Expo benefit from this increase.
f) Forest/PILT
Federal forests receipts are mostly down, but this can change at any
time. PILT went up but now is stagnant. Federal forest funds seem to
be going away entirely. When one goes up, the other typically goes
down. It hangs in the balance now, with the unknowns of a new
administration.
g)
Health Benefits Trust
Mr. Lowry referred to a snapshot spreadsheet for this fund. They have
tried to break even with rate -setting but end up increasing the ending
balance. This will be drawn down as appropriate. Claims have increased
some, but revenue is keeping pace.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 3 of 14
3) Financial Issues Status.
a) Refinanced Debt
Some debt was refinanced to take advantage of lower interest rates.
This resulted in a savings of about $912,000, but over the remaining life
of the debt for the recycling facility and RV Park construction, they will
realize a savings of over $6 million. Rates are starting to go up, if
financial projections are accurate.
b) Finance/HR Software Project
They are into about six months of the financial phase of the Tyler
Technologies project. They plan to go live with it in July 2017. A core
group is working on this project. It is difficult and tedious work, and it
will take a while to make the appropriate adjustments.
HR and payroll will start after that, and should go live in 2018. Andrews
Technology is providing the software for electronic payroll entries.
Dan Turel asked the last time software was updated. Mr. Lowry replied
it was in 2000, and is way past due. There is about a $1.8 million cost,
but they are jumping a long way forward.
4) Budget Assumptions for 2017/18.
a) General Fund Support
General Fund is an integral fund for any governmental entity, for
departments with no revenue generation. A lot of general fund goes to
other funds. It will likely be similar to the fiscal year, to maintain
services at the same level.
Mr. Anderson explained that some departments are reliant on general
funds, and there are some unknowns out there. They are often at the
mercy of the State and Federal administrations. It is not automatic that
general fund makes up any departmental shortfalls. That is a discussion
for the Budget Committee when they meet, and when more is known.
Mr. Maier asked if they can identify the programs that are funded in this
way. Mr. Anderson said there can be many of these that are set up with
temporary funding and limited duration employees. It will be hard to
peel some of them off, if they have been around for a while. The State
sometimes stops funding programs that have become expected.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 4 of 14
Mr. Anderson said this might affect Community Justice as well. The
Committee may have to decide if it is important to sustain and back -fill
certain departments' requests.
Mr. Lowry said that some departments are completely general fund, like
the Assessor, Veterans' Services and others. The next six to eight years
will be the most challenging because of potential PERS costs, at 4.5% of
payroll starting with this fiscal year. There is no apparent way out of
increasing this rate unless the fund starts earning more. It has been in
the 5-6% earnings range in recent years.
Mr. Barrett asked if there is a way to wipe this out, if the economy turns
around. Mr. Lowry said they would need PERS to earn 7-8% each year,
and it would take a while to feel the impact. It would have to be
dramatic, and no one anticipates this.
Mr. Henderson asked if there have been any returns at that level. Mr.
Lowry said that they have been at 10% some years in the past. It is
possible, but it takes time to affect the PERS rate due to the unfunded
liability. It would have to be sustained and dramatic, and over 7.5% for
years. Legislative changes have made this hard to track, but Deschutes
County joined the risk pool of PERS in the past, along with other
agencies and the schools. Deschutes County had a $30 million surplus at
the time, and this lowers the rate for the County.
b) Cost of Living
There is a floor of 1.5% and a maximum for the labor groups for a COLA.
It starts at 2.0% in 2018. The assumption is it will be higher than the
floor amount. Some contracts may not be settled by the time the new
budget is adopted: in particular, AFSCME, the Sheriff and 9-1-1. 9-1-1 is
now in binding arbitration; Sheriff negotiations are just starting. Mr.
Maier noted that the ones under negotiations now might be retroactive.
Mr. Kropp said AFSCME will start negotiations this spring.
c) Health Insurance Rates
Mr. Lowry said that the departments pay 2.5%, with no charges for
vacant positions or spouses. They will try to help departments get
through the first big impact of PERS increases.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 5 of 14
d) Assessed Value — Countywide
Property taxes were flat for years, but are starting to grow based on
values.
e) PERS Rates and Reserve Strategy
They pick up 6% from employees. Some agencies actually pick up this
amount because then they don't have to pay FICA. This fact is usually
missed in conversations. 1.86% is the debt service rate. He explained
the rates for the different tiers and plans. There is a mix of the four
categories. Tier I and II are aging out. Everything since then is less
benefited with lower costs. They will be at almost 30% for Tier I and II
for public safety.
By 2022, this might be at 37%, barring any big changes. PERS actuaries
present each year to the PERS board, and they set the rates and
anticipate future rates. The new rates take effect in mid -2017 and are
good for two years, unless there are impacts from legislation. Mr. Maier
noted that big changes are usually subject to lawsuits, and those can
take a year or longer to resolve.
They will lower the rates to departments by using about $1 million in
funds from the PERS reserve, which is at $13 million. PERS is based on a
percent of wages so will increase similarly. It is recalibrated each year to
try to keep the impact to departments manageable. Costs will double
by about 2024, and the reserve will be drawn down at the same time.
Mr. Maier stated that they had budgeted for an increase that did not
occur, so they put it into reserves, knowing that an increase would come
eventually. This savings all came from departments in the first place.
This was due to good returns during those years. Mr. Lowry said that
many entities lost those reserves during the recession, but Deschutes
County planned this out better than most. However, many of the
numbers could change, depending on a lot of factors that are still
unknown.
Mr. Anderson added that this won't cover the hit to departments
entirely, but will lessen the impact. Mr. Lowry then referred to a chart
that includes a 2% COLA (not including merit increases).
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 6 of 14
Mr. Barrett asked if there is a Tong -term strategy for the County based
on this information. Mr. Anderson said that it is now something that
can't be ignored by the bigger departments, especially law enforcement.
There may have to be some hard decisions if things don't change for the
positive. This could result in service reductions eventually, but there are
a lot of variables.
Commissioners Baney asked if they should look at more contracting
work out rather than hiring fully -loaded employees. At AOC, there was
a discussion about bonding for Tier I costs. She doesn't think the State
as a whole can survive it being as it is now.
f) Class and Comp Study
Chair Unger asked if this is ready to be reviewed. Mr. Lowry said he
doesn't think it is done yet.
g)
Internal Services
Departments have to cover any increased costs for these services.
Allocations will be about the same as last year, with no staffing
increases. Some items now being charged out to departments are the
Finance/HR project and class and compensation study.
5) Status of Budget Issues by Department.
Mr. Anderson said he is trying to zero in on the main issues this year. He
referred to a report at this time. The Sheriff's Office is facing some real and
some possible increases in expenses, including labor and PERS. The labor
contract is an unknown. They started negotiations just yesterday, and no
one knows yet where it is going. This can impact future labor agreements
with other groups.
The sober station program is still being discussed. The Sheriff is looking at a
subscription plan where other agencies would pay a fee, but staffing for it
will have to increase. General population growth is an issue, so there could
be problems with capacity. They may have to look at the current tax rates at
some point.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 7 of 14
The District Attorney brought up several issues last spring. The medical
examiner was a separate request and it was decided this position was
underfunded. A placeholder was put in the budget to fully examine how the
M.E. is set up throughout the State. This has been done, and the results
were all over the map. Ultimately, it was left in the D.A.'s Office but will be
stand-alone so the specific M.E. budget can be examined each year.
In terms of compensation, this position, along with the Deputy M.E.'s and
administrative staff, have been underpaid for years. Mr. Anderson will
finalize an amendment to the current contract soon. It needs to be similar to
that of other like counties. Legally, this position reports to the State M.E.
Office, with them working closely with the local D.A.
Civil commitments were taken over by the previous D.A. a few years ago, but
Mr. Hummel feels this is a burden and requested that it go back to County
Counsel. Counsel feels it should stay where it is, as the D.A. receives funds
for this work. The D.A. has accepted this arrangement for now.
The D.A. requested the equivalent of about 3.5 positions last year. This was
not awarded. Mr. Anderson has been working with the D.A. to identify some
annual savings in the department, and authorized limited duration staffing
help, but there are no guarantees that this will continue. He expects to see
another request for additional staffing for the next fiscal year. The D.A. was
urged to base any requests on service levels.
There is some level of triage that takes place in the department, due to the
impact of highly visible cases. They are determining what is suffering from
less than optimal funding. This should help the Budget Committee make
informed decisions in this regard, if it is felt some services should be
provided or enhanced.
Mr. Maier said comparative statistics with other counties are important to
review. Mr. Barrett added that he wants to look at the solid information,
other than emotional appeals regarding staffing and services.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 8 of 14
Commissioner DeBone wants to coordinate more with the Public Safety
Coordinating Council to see if there is support from there. Commissioner
Baney said they have to be sensitive because of the politics of the D.A., some
of which might not be supported by various law enforcement officials. PSCC
can assist with some issues. Justice Reinvestment dollars may end up being
reduced this year, however. Ken Hales stated that PSCC has a few things it
must address by statute, and others that they can address and make
recommendations.
Health Services is getting pressure from various directions, and it will take a
while for the dust to settle. The Certified Community Behavioral Health
Community grant program is being pursued, to institute a much more robust
mental health program locally. Deschutes County elected to participate and
this is in the federal review process now.
No one knows how these priorities might change with new the new
administration, and they don't know if Oregon will be selected. It is a
competitive process. If selected, there would be a substantial increase in
funding and this might result in the need for as many as two dozen positions,
clinical and administrative, in large part due to reporting requirements. They
won't know until early 2017.
Regarding public health, efforts are occurring about creating core elements
for minimally but adequately addressing public safety in each county.
Deschutes County made a choice long ago to fund public safety services at a
higher level. This is called modernization, but involves expansion of some
services here, and crosses each line of public health. It may be an issue
addressed by the legislature this year. It could mean significant pressure on
budgeting.
The future of external funding sources is largely unknown, and could end up
on a downward trend. Health Services is mostly subsidized. However, there
is an impressive array of services here. They have tried to break down the
funding to a point where more exact opinions about funding could be
developed.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 9 of 14
There is a new Health Services Director, George Conway, who spent most of
his career at the Center of Disease Control, although he did oversee
governmental agencies. He has been informed that budgetary review is
important to the Committee. There are a lot of variables that make this very
challenging.
Solid Waste was discussed in regard to a tipping increase. There are some
big ticket issues coming up, such as new cells and eventual closure. Cities
require a six-month notice of a rate increase, so they need to know this by
January 1. The Board of Commissioners makes this decision, but input is
welcome. The Waste to Energy project looked promising, but they could not
get funding. They purposefully delayed the decision to see what happened
with this type of program at a facility in Long Beach, California.
They are proposing to take a step back and do a full-blown strategic plan for
the whole department. This would include landfill capacity, how they might
affect capacity by utilizing other programs such as waste to energy; diversion
from the landfill of materials as woody debris, biomass and recycling. They
need to do a much bigger picture look, including operational hours at
transfer stations, and choices to extend the life of the landfill or look at
alternatives, on site treatment, incineration, a contract for hauling, or a new
location. They hope to have this done by June. It should result in a timeline
and key dates when they have to take some kind of action.
Mr. Maier said that it takes ten years to site a new landfill. It is important to
look at this in a big way. Mr. Anderson stated there are consultants out
there that specialize in this work. Mr. Maier noted that the DEQ, haulers and
cities need to be involved so they can support where it is going. Mr.
Anderson said there would be a steering committee involved.
Commissioner DeBone said it would be good to capture the methane now to
generate power. Maybe that is a choice they can make now, rather than it
being part of a study. Mr. Anderson replied that they will come to the Board
to talk about this and other things. They don't want to foreclose other long-
term options by doing some kind of short-term fix now.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 10 of 14
Regarding the tipping increase, capital will be needed for the next cell
construction. A decision needs to be made soon in this regard.
Phil Henderson said he thought they might be considering an increase just
because there hasn't been one for a while. He asked what the haulers think.
Mr. Anderson said this is not the main reason for the suggestion, and Timm
Schinke is constantly talking with the haulers. They largely pass this expense
on to the trash producers — the public and businesses. Mr. Henderson
acknowledged that the cost would be borne by him as a member of the
public. He wanted to know why it is needed.
Mr. Anderson said there is a spreadsheet with milestone capital needs, and
that is the basis for the request. Mr. Barrett noted that there was an
extensive presentation last year, and the need is not that far in the future. It
was recommended that they start addressing those needs sooner rather than
later. Mr. Maier stated that there are also long-term obligations and
expenses for the transfer stations as well.
Chair Unger said that Redmond requires everyone to pay, and wants to have
this discussion before they deal with their budget. He suggested that they
work with Redmond on the timeline. They may not need exactly six months.
Mr. Anderson said there is an agreement for the six months' timeframe. Mr.
Maier noted that it is a Board decision to make, and the discussion previously
was to proceed. He still feels that way.
Commissioner DeBone said that the facilities are very cost-effective, and it is
a long term investment. He is generally supportive of this increase. Mr.
Anderson wants the Committee and Board to feel comfortable with this. Mr.
Maier observed that no one knows if there might be unforeseen expenses
from the DEQ or other issues. Originally it was supposed to close in 2017,
but things have changed substantially over the past couple of decades. He
hopes they don't have to go through siting wars again.
Regarding the Fair & Expo Center, the land swap with DSL is proceeding. It
will provide a buffer to industrial uses to the south. They are exploring the
feasibility of a sports complex to bring in a new type of business, in
conjunction with the City of Redmond and COVA.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 11 of 14
They are also looking at a business plan for the Fair/Expo to capture other
types of business by sprucing up or improving some of the facilities. Capital
decisions have to be made. A consultant is already looking at this.
The Road Department issues primarily involve transportation funding. This is
a high priority at the State level. The statewide gas tax may increase to
accomplish some of this work.
CDD added five positions for the current year, and a couple of others have
been added. Their business is off the charts. Things have not slowed down
for them yet, even with summer over. It is important to maintain service
levels, so positions have been added as necessary. He expects another
request for next year. They are still considerably less staffed than they have
been in the past.
Community Justice is affected by the proposed Governor's budget. Ken
Hales said that there are cuts to Juvenile, and on the Adult side the budget
reduces all but one source. There was an 18% reduction to justice
reinvestment, resulting in a reduction of $150,000 out of $850,000 here.
This would affect the base grant. This would mean a 5% cut overall, below
the opt -out. Legislative Concept 778 reduces a lot of felonies into
misdemeanors — probably affecting 300 offenders here. That would be a
$600,000 hit. Over $700,000 being cut this coming year is significant. They
are projecting maybe a $19 million impact statewide. The more offenders
you supervise, the more funding you get. Reclassification makes them come
off the count. This means a lot of unsupervised offenders in the community.
A facilities capital needs analysis is underway, to look at long-term needs by
building. Big ticket things like the courthouse and future milestones for
roofing and other systems are being addressed. This will help to make good
decisions regarding capital reserves. Mr. Maier asked if this factors in the
current jail; Mr. Anderson said yes.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 12 of 14
Chair Unger asked about transportation infrastructure for places like Tumalo
and Terrebonne, in conjunction with ODOT. Mr. Anderson said this is not
part of the County's capital needs study, but an ongoing commitment to
infrastructure should be addressed. Chair Unger stated that Chris Doty of
Road follows this, and knows that the County will be looked at for matching
funds for infrastructure. Mr. Anderson replied that there is a separate plan
for this kind of expense.
Regarding the 4-H/Extension building loan, they have hired an architect to
refine the costs. This will help make sure they have capacity to pay the loan
back.
Sunriver Chamber has a consultant reviewing their facility, but there might
be some larger underlying problems. They need help to chart their future.
Commissioner DeBone is working with them to help determine how they will
do business in the future.
Mr. Maier asked if EDCO is involved. Commissioner DeBone said EDCO is the
front-end business recruiter. This is different from supporting existing
businesses. The Chamber wants to do all kinds of things when they need to
have more focus on their core functions. Commissioner Baney asked if they
plan to have Sunriver Chamber back to make a presentation at the Budget
Committee hearings. She does not want a display like there was last year,
since it was not beneficial last year. Mr. Maier agreed.
Joe Stutter would like to have some TLT funding for a cohesive strategy
coordinator. He has asked for commitments from other local agencies. Mr.
Anderson and he are looking at what properties are at risk to determine
values, but he doesn't think this is ready. They need to compare this with
other counties so it is known what to ask them for. All counties need to get
together to talk about cohesive strategy.
Chair Unger asked if the legislature is going to focus on room tax. Mr.
Anderson stated that the City of Bend wants to pursue this and modify what
is eligible for local use under this category.
Minutes of Budget Committee Meeting
Tuesday, December 13, 2016 Page 13 of 14
Chair Unger asked if COVA is going to provide a multiple year plan, to know
how they plan to fund things in the future. Mr. Anderson will ask them to
provide this information. Commissioner DeBone said they need to know
whether to plan on an increase or a decrease. Chair Unger wants to know
their strategies. Mr. Anderson noted there will be policy discussions
regarding this funding with COVA and the Sheriff.
6) Departmental Presentation Format.
Mr. Lowry asked if the normal budget presentation format works for the
group. Mr. Maier wants some of the outside entities to keep their
presentations a bit shorter.
7) Budget Calendar.
Loni Burke referred to the budget calendar, but the most important to this
group are the budget presentations and decision dates.
8) Other.
Being no further discussion, the session ended at 3:50 p.m.
DATED this a -- Day of 22 2016 for the
Deschutes County Board of Commissioners.
ATTEST:
Recording Secretary
Minutes of Budget Committee Meeting
Cry Lc a�—
Alan Unger, Chair
Z,iit�
Tammy Baney, Vi�hair
Anthony DeBone, Commissioner
Tuesday, December 13, 2016 Page 14 of 14
Deschutes County Budget Committee Meeting
December 13, 2016
1:30 p.m. — 4:00 p.m.
1) Opening Comments — Tom Anderson
2) County Financial Update — Wayne Lowry
a) General Fund
b) Other Selected Funds
c) A/V & Property Taxes
d) Development Activity
e) Room Tax
f) Forest/PILT
g) Health Benefits Trust
3) Financial Issue Status — Wayne Lowry
a) Refinanced Debt
b) Finance HR Software Project
4) Budget Assumptions for 2017/18 — Wayne Lowry
a) General Fund Support
b) Cost of Living
c) Health Insurance Rates
d) Assessed Value — Countywide
e) PERS Rates and Reserve Strategy
f) Class and Comp Review
g) Internal Services
5) Status of Budget Issues by Department — Tom Anderson, Erik Kropp
6) Departmental Presentation Format
7) Budget Calendar
8) Other
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FY 2016-17 BUDGET COMMITTEE MID -YEAR REPORT
Department Budget Issues
• Sheriff's Office
o Tax Rate Capacity - Labor Contract, Sober Station
• District Attorney
o Medical Examiner Resolution, Civil Commitments
o Temporary Staffing -Current Year, Expected FY 18 Request
• Health Services
o CCBHC—Certified Community Behavioral Health Clinic Grant Application, Public Health Modernization
o Federal Funding
o Budget Review Structure
• Solid Waste
o Tip Fee Increase
o Strategic Planning — Landfill Capacity, Energy Recapture, etc.
• Fair & Expo Center
o Land Expansion/Long Range Visioning
• Road Department
o Transportation Funding
• Community Development
o Business Volume/Staffing
• Community Justice
o State Funding
• Facilities
o Capital Needs Analysis
• Other
o OSU Extension Building Loan
o Sunriver Chamber
o Cohesive Strategy Coordinator
No Significant Issues
> County Assessor's Office
> BOCC/Administrative Services
> Human Resources
> Veteran's Services
> Finance
> County Clerk
> Justice Court
> Information Technology
> 911
> Legal
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